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FINE-TUNING the NSP: Discussions of Problems and Solutions with Facilitating Partners

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FINE-TUNING the NSP: Discussions of Problems and Solutions with Facilitating Partners Working Paper Series FINE-TUNING THE NSP: Discussions of Problems and Solutions with Facilitating Partners Palwasha Kakar Funding for this research was November 2005 provided by the UK Department for International Development (DFID) © 2005 Afghanistan Research and Evaluation Unit. All rights reserved. The views and opinions expressed in this report do not necessarily reflect the views of AREU. Fine-Tuning the NSP: Discussions of Problems and Solutions with Facilitating Partners About the Author Palwasha L. Kakar is currently the Local Governance Research Officer specifically focused on the National Solidarity Programme research at the Afghanistan Research and Evaluation Unit. An Afghan American, she has been researching local governance in Afghanistan for over a year now. She has a master’s degree focusing on gender, politics and religion with a specific emphasis on Afghanistan and the surrounding region from Harvard University, USA. Prior to joining AREU, she was involved in research regarding Afghan customary law, Afghan women’s identity, and social spaces in Afghanistan. She has also published papers on female prophets and saints in Islam. About the Afghanistan Research and Evaluation Unit The Afghanistan Research and Evaluation Unit (AREU) is an independent research organisation that conducts and facilitates action-oriented research and learning that informs and influences policy and practice. AREU also actively promotes a culture of research and learning by strengthening analytical capacity in Afghanistan and by creating opportunities for analysis and debate. Fundamental to AREU’s vision is that its work should improve Afghan lives. AREU was established by the assistance community working in Afghanistan and has a board of directors with representation from donors, UN and multilateral organisations agencies and non-governmental organisations (NGOs). Current funding for AREU is provided by the United Nations Assistance Mission in Afghanistan (UNAMA), the European Commission (EC), the United Nations High Commissioner for Refugees (UNHCR), Stichting Vluchteling (SV), the World Bank, the United Kingdom Department for International Development (DFID), and the govern- ments of Sweden, Switzerland, Denmark and Canada. Funding for this working paper was provided by DFID. Fine-Tuning the NSP: Discussions of Problems and Solutions with Facilitating Partners Acknowledgements This paper is the result of much truth telling and people committed to community- driven development in Afghanistan sharing their honest experiences and ideas about the National Solidarity Programme (NSP). I would like to thank all the NSP Managers, Coordinators, Directors and Engineers who contributed their time and with patience described the richness of various aspects of the NSP to me. These include: Elizabeth Kronoff (formerly ACTED), GB Adhikari and Fazal Ali (ActionAid), Mal Simmons (formerly AfghanAid), Steve Mason (AKDN), Shah Jahan and Jahangir Hussain (BRAC), Michelle Kendall and Eng. Nader (CARE), Waheed Hamidi and Wali Farhodi (CHA), Lyn Wan (formerly DACAAR), Abdul Sattar (DACAAR), M.E. Zeerak (GRSP), Dr. Mirzazada and Farishanoh Ofariaeva (GAA), Melissa Payson and Usman Tariq (IRC), Marie Brillet and Mr. Safi (MADERA), Lubna Bhayani (Okenden), Shah Wali (formerly OXFAM), Hakan Torngard (formerly SCA), Dr. Zia Shafaq (SDF), Fritz Szilard and Mr. Sawayz (UN-Habitat). I would also like to give special thanks to my supervisor and mentor on this project, Sarah Lister, for the direction, thoughts and support she has given me. Finally, I would like to thank all who took the time to review my paper and make provocative remarks and comments without which this paper would not be what it is. Thanks to Asif Rahimi (MRRD), Andreas Schild (MRRD/NSP-OC), Anne Johnson (formerly MRRD/NSP-OC), Homaira Nassery (WB), Norman Piccioni (WB), Usman Tariq (IRC), Dr. Faizullah Kakar (MoPH), Paul Fishstein (AREU), Hamish Nixon (AREU), Daud Omari (AREU), and Joyenda Mir Ahmad (AREU). A special thanks belongs to Brandy Bauer (AREU) for comments, editing, keeping me sane and putting the final touches on this paper. Fine-Tuning the NSP: Discussions of Problems and Solutions with Facilitating Partners Contents Executive Summary 1 1. Introduction 4 1.1 Background on this research and methodology 5 2. Power Structures at the Local Level 7 2.1 Traditional local powerholders 8 2.2 Conflict and change: the legacy of multiple power structures 11 2.3 Where the NSP fits in 12 2.4 Summary 22 3. Forms of Women’s Participation 23 3.1 Types of CDCs and women’s participation in them 23 3.2 Other challenges to women’s participation in the NSP 27 3.3 Summary 28 4. Potential NSP Linkages to Other Institutions 29 4.1 The World Bank’s Integrated Approach 30 4.2 Three promising examples of CDC integration 34 4.3 Risk factors: local agents’ overload and burn out 37 4.4 Role of CDC Clusters 38 4.5 Summary 38 5. Conclusions and Recommendations 40 References 42 Recent Publications from AREU 44 Fine-Tuning the NSP: Discussions of Problems and Solutions with Facilitating Partners Glossary alaqadars sub-district level leaders appointed by government (set up following the 1964 Afghan Constitution) beg/sardar/ large landowners khan/nawab/ zamindar jerib unit of land measurement; approximately 1/5 of a hectare jihad holy war jirga/shura tribal/community councils kariyadars popularly elected village leaders (set up following the 1964 Afghan Constitution) malik/arbab traditional economically powerful village leaders manteqa/howza/ area, ward, territory or cluster of villages with a linked muhallah identity mirab village water controller mujaheddin holy warriors fighting in jihad mukhi/mukhiyani Ismaili term for community religious leaders mullah religious teacher, mosque prayer leader Pashtunwali indigenous code of conduct among Pashtuns qazi religious judge seer unit of measurement of weight, equivalent to approximately seven kg of grain Shariah Islamic law ulema (religious) scholars Fine-Tuning the NSP: Discussions of Problems and Solutions with Facilitating Partners Acronyms ACTED Agency for Technical Cooperation and Development AKDN Aga Khan Development Network AREU Afghanistan Research and Evaluation Unit BDN Basic Development Needs Programme BPHS Basic Package of Health Services BRAC Bangladesh Rural Advancement Committee CDC Community Development Council CDD Community Driven Development (programmes) CDP Community Development Plan CHA Coordination of Humanitarian Assistance CIDA Canadian International Development Agency DACAAR Danish Committee for Aid to Afghan Refugees DANIDA Danish International Development and Assistance Agency DFID (UK) Department for International Development FP Facilitating Partner GAA German Agro Action GRSP Ghazi Rural Support Programme IRC International Rescue Committee MAAH Ministry of Agriculture, Animal Husbandry and Food MADERA Mission d’Aide au Developpement des Economies Rurales en Afghanistan MoEd Ministry of Education MoI Ministry of Interior MoPH Ministry of Public Health MRRD Ministry of Rural Rehabilitation and Development NEEP National Emergency Employment Programme NPP National Priority Programme NSP National Solidarity Programme OC Oversight Consultant SACRA Special Action Committee for Religious Affairs SCA Swedish Committee for Afghanistan SDF Sanayee Development Foundation UC Union Council (Pakistan) UNAMA United Nations Assistance Mission in Afghanistan USAID United States Agency for International Development Fine-Tuning the NSP: Discussions of Problems and Solutions with Facilitating Partners Executive Summary Since mid-2004, the Afghanistan Research and Evaluation Unit (AREU) has been studying the National Solidarity Programme (NSP), one of the Afghan government’s National Priority Programmes, in order to better understand changes to power relations in rural Afghanistan as a result of the NSP. This working paper presents preliminary evidence gathered from interviews with Facilitating Partners (FPs) of the NSP, conducted in Kabul between February and March 2005, as well as information gathered from initial fieldwork in Bamyan, Herat, Faryab and Nangarhar. Discussions with FPs highlighted three key areas of concern as the NSP moves forward: negotiating with local powerholders, assuring women’s equitable participation in the programme, and finding means to sustain the programme after the FPs pull out of communities. 1. Negotiating with local powerholders Many changes in local and central governance over the last century have led to multiple existing power structures at the local level that the NSP Community Development Councils (CDCs) have to compete with for legitimacy and authority. This causes problems in the areas of: • Signing the initial social contract between the community and the FP or agreeing to accept the terms of the NSP in the community; • Electing CDC members to create a new council that may not include all powerholders in the community in the process; • Attempts at controlling projects of one or many communities to the benefit of one commander; and • Maligning the NSP on religious grounds. Yet traditional institutions such as Maliks , jirgas , etc. are networks that sustain meaningful practices of decision-making that are acceptable and legitimate within a communal worldview and are significant vehicles for political action. Some FPs have found that bridging formal institutions with traditional institutions successfully forms communally acceptable governance institutions at the local level and creates greater “buy-in” to the NSP while not
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